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The state commissioner of health is authorized by T.C.A. § 68-2-1101 et seq. to establish community health agencies to encourage and coordinate healthcare for indigents. The statute authorizes four metropolitan health agencies (in the state's four largest cities) and eight rural agencies, each directed by its own board. T.C.A. § 68-2-1104. In order to carry out their duties these agencies may execute contracts, acquire property, procure insurance, collect fees, and perform other actions needed to achieve their goals. T.C.A. § 68-2-1106.